[Federal Register Volume 79, Number 124 (Friday, June 27, 2014)]
[Notices]
[Pages 36576-36577]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2014-14913]


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DEPARTMENT OF TRANSPORTATION

Federal Aviation Administration

[Docket No. FAA-2013-0265]


Policy for Discontinuance of Certain Instrument Approach 
Procedures

AGENCY: Federal Aviation Administration (FAA), DOT.

ACTION: Notice of policy; disposition of comments.

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SUMMARY: This action adopts with minor modification, the policy 
proposed in the Federal Register on August 2, 2013. Under this policy, 
the FAA establishes the criteria to identify certain non-directional 
beacon (NDB) and very high frequency (VHF) omnidirectional radio range 
(VOR) instrument approach procedures that can be considered for 
cancellation. Additionally, the FAA responds to comments received 
during the comment period on the notice of proposed policy.

FOR FURTHER INFORMATION CONTACT: For questions concerning this action, 
contact Wayne Eckenrode, Aeronautical Navigation Products, AJV-3, 
Instrument Flight Procedures Efficiency Group, Manager, Federal 
Aviation Administration, Air Traffic Organization, 4500 Mercantile 
Plaza Drive, Fort Worth, TX 76137; telephone (202) 494-8898, email [email protected].

Background

    Right-sizing the National Airspace System (NAS) is an integral part 
of the FAA's commitment to deliver the benefits of the Next Generation 
Air Transportation System (NextGen) through enhanced technology, 
enhanced capabilities, and more efficient, streamlined services. Focus 
on improvements in satellite-based navigation based on Global 
Positioning System (GPS) technology has facilitated the implementation 
of a large number of Performance Based Navigation (PBN) Instrument 
Approach Procedures (IAPs) into the NAS. These PBN procedures charted 
as RNAV (GPS) and RNAV (RNP) IAPs, improve the safety and efficiency of 
the NAS by providing more precise, repeatable flight paths to the 
runway. The total number of procedures in the NAS has nearly doubled 
over the past decade, as legacy procedures based on older, ground-based 
technology, are maintained alongside the newer, satellite-based 
procedures. In some cases, the older procedures are redundant or 
obsolete, and maintaining them unnecessarily increases FAA costs, as 
well as creates the need for air traffic controllers to train and be 
proficient on procedures that are not used or needed. Pilots must also 
maintain proficiency on these procedures and, in some cases, memory 
limitations in the Flight Management Systems (FMSs) in their aircraft 
result in the inability to load all the data needed to support the 
procedures. Removing certain redundant or underutilized IAPs will 
increase the safety and efficiency of the NAS by streamlining user 
access and FAA services, allowing the FAA to focus on delivering 
greater benefits through new technology.
    In September 2010, the FAA awarded a grant to the Flight Safety 
Foundation, to research and provide independent insight on how the FAA 
should eliminate redundant or underutilized Instrument Approach 
Procedures (IAPs). The Flight Safety Foundation's study and 
recommendations were developed based on interviews and surveys of FAA 
personnel, and key airspace stakeholders. Among those interviewed were, 
Aircraft Owners and Pilots Association (AOPA), Air Line Pilots 
Association, International (ALPA), Air Transport Association (ATA), 
National Business Aviation Association (NBAA), Regional Airline 
Association (RAA), and the U.S. Air Force. The study formed the basis 
for the notice of proposed policy and request for comment (78 FR 47048) 
published in the Federal Register on August 2, 2013. The notice sought 
comments on the proposed criteria the FAA would utilize to determine 
which NDB and VOR IAPs could be considered for cancellation.

Summary of Comments

    The FAA received a total of 14 comments from individuals, the 
Department of Defense (DoD), AOPA, the Maryland Aviation 
Administration, the Wahoo Airport Authority, and SkyWest Airlines.
    Several of the comments received concerned the ability to train 
pilots on NDB or VOR IAPs if the ground-based procedures at an airport 
were cancelled. AOPA asserted that most flight instructors and pilots 
rely very heavily on ground-based navigational aids for initial and 
recurrent instrument flight training activities.
    This policy will not reduce the ability to train pilots on NDB or 
VOR IAPs. Under this adopted policy, one existing ground-based IAP 
procedure will remain at each airport under this policy.
    Three commenters were concerned with aircraft operations at an 
airport during periods of inclement weather if the ground-based 
procedure to a particular runway was cancelled. AOPA stated that 
consideration needs to be given to the individual airport operation and 
if there is a predominant or exclusive general aviation runway at a 
particular airport, the procedure offering the lowest approach minimums 
may not provide the greatest access. Based on this situation, AOPA 
asserted that it may be necessary to preserve the IAP to the general 
aviation runway for use during instrument training in visual 
meteorological conditions.
    The criteria adopted in this notice ensure that an airport does not 
lose IAP capability to any runway that already has a published IAP. 
Additionally, the FAA will consider runway usage and local weather 
conditions when identifying candidate IAPs for cancellation.
    Several commenters questioned whether the FAA will consider 
community needs for goods and emergency services at certain locations 
with limited access.
    The adopted criteria ensure that at least one RNAV IAP and one 
ground based IAP will remain published at airports that already have 
them.
    Individuals, AOPA, Wahoo Airport Authority, Maryland Aviation 
Administration, and SkyWest Airlines, submitted general comments 
concerning the decommissioning or discontinuance of NDBs and/or VORs.
    The decommissioning or discontinuance of NDBs or VORs is beyond the 
scope of this action. The implementation of this policy will not 
decommission or discontinue the use of any facility, including NDBs and 
VORs. The purpose of this policy is to appropriately identify IAPs that 
can be cancelled.
    The DoD commented that the FAA should explore additional methods to 
reduce costs of maintaining IAPs. The DoD stated that other methods to 
reduce costs may exist such as reducing the costs of flight checks 
which form a significant portion of the IAP maintenance costs.
    The FAA will continue to examine ways to reduce operating costs 
associated with the maintenance of IFPs including reduction in flight 
check costs.
    Many commenters expressed concern with GPS signal interruption, 
which emphasized, in their view, the need for redundant ground-based 
IAPs.

[[Page 36577]]

Commenters also noted some geographic areas in the NAS incur GPS signal 
interference more regularly than others due to U.S. Government testing.
    Under this policy, the FAA will ensure that at least one ground 
based IAP will remain at each airport.
    The FAA agrees that the adopted criteria must also consider GPS 
signal interference. Therefore, the FAA modifies this policy and adds 
the following as a factor to be considered: ``Airports located within 
an area routinely affected by GPS signal interference testing.''
    The DoD stated that if IAPs at a civil airport are extensively 
utilized by military aircraft for training and/or proficiency, these 
IAPs should be retained. Additionally, the DoD suggested that DoD 
facilities should be added to the list of airports that are not 
considered for NDB or VOR IAP cancellations.
    While this policy will not add DoD facilities to the list of 
airports that are not considered for NDB and VOR IAP cancellation, the 
FAA agrees to modify the policy so that IAPs used extensively by 
military aircraft for training and/or proficiency will remain in the 
National Airspace System.

Policy

    After review and evaluation of the public comments received on the 
policy proposed in the Federal Register on August 2, 2013 (FAA-2013-
0265), the FAA adopts the criteria for selecting potential IAPs for 
cancellation as proposed with two modifications based on the comments 
received. FAA adds the following to the list of consideration factors: 
``Airports located within an area routinely affected by GPS signal 
interference testing'' and ``Extensive use by the military for training 
and/or proficiency.''
    The NDB and VOR IAPs recommended for cancellation will be selected 
at airports using the adopted criteria. FAA notes that all airports 
having existing RNAV and ground-based IAPs will maintain at least one 
RNAV and one ground-based IAP under this initiative.
    Instrument Approach Procedures are incorporated by reference into 
Title 14 of the Code of Federal Regulations part 97, subpart C, and are 
promulgated by rulemaking procedures. Once the FAA identifies IAPs that 
may be cancelled in accordance with the adopted policy noted above, the 
FAA will follow standard rulemaking procedures including a Notice of 
Proposed Rulemaking in the Federal Register containing the list of NDB 
and VOR IAPs recommended for cancellation. The FAA will consider all 
public comments before issuing a Final Rule removing selected IAPs.
    Airports considered for NDB or VOR IAP cancellation:

--All airports with an NDB IAP.
--All airports with a VOR/DME RNAV IAP, unless it is the only IAP at 
the airport.
--All airports with two or more ground-based IAPs and an RNAV IAP.
--All airports with multiple, redundant ground-based IAPs (e.g., three 
VOR procedures).

    Additional factors for consideration in determining the list of 
potential candidates for NDB or VOR IAP cancellation:

--Prevailing wind runways.
--Prevailing runway alignment during adverse weather operations.
--Runways with a published ILS IAP and a ground-based IAP.
--For runways with multiple VOR and NDB IAPs consider IAPs with the 
lowest minimums (if minimums are within 20 feet of each other), and 
IAPs that allow for optimum use by all users.
--Airports located within an area routinely affected by GPS signal 
interference testing
--Extensive use by the military for training and/or proficiency.

    Airports not considered for NDB or VOR IAP cancellations:

--Airports with only RNAV/RNP IAPs published.
--Airports with only one ground-based procedure.
--Airports will not be considered if cancellation would result in 
removing all IAPs from the airport.

    Issued in Washington, DC, on June 19, 2014.
Abigail Smith,
Director, Aeronautical Navigation Products.
[FR Doc. 2014-14913 Filed 6-26-14; 8:45 am]
BILLING CODE 4910-13-P